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Report
Blenheim Stormwater Strategy - Action Plan Prepared for Marlborough District Council (Client)
This report has been prepared by Beca on the specific instructions of our Client. It is solely for our Client’s use for the purpose for which it is intended in accordance with the agreed scope of work. Any use or reliance by any person contrary to the above, to which Beca has not given its prior written consent, is at that person's own risk.
Revision History
Revision Nº Prepared By Description Date
A Greg Lee Draft 21 May 2009
Document Acceptance
Action Name Signed Date
Prepared by Greg Lee
Reviewed by Graham Levy
Approved by Greg Pollock
on behalf of Beca Carter Hollings & Ferner Ltd
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Blenheim Stormwater Strategy - Action Plan
Table of Contents 1 Introduction .......................................................................................................... 1
1.1 Responsive Process .................................................................................................... 1 1.2 Stormwater Strategy .................................................................................................... 1
AEP Annual Exceedance Probability. A statistical term defining the probability of an event of a given size being equalled or exceeded in any year, expressed as a percentage. For example, a 5% AEP event has a 5% chance of being equalled or exceeded in any one year.
BMP Best Management Practice. Methods (programmes, systems or structures) used to control or prevent contamination of receiving environments.
CMA Coastal Marine Area
CSC Comprehensive Stormwater Consent. The purpose of a CSC is to consent multiple activities associated with stormwater management and discharge within urban catchments1.
Contaminants Includes any substance or heat that when discharged into water or onto land, changes or is likely to change the physical, chemical or biological condition of that land or water onto or into which it is discharged.
MDC Marlborough District Council
Modified Watercourse A watercourse or river that has always existed in some form in the general area. However, the watercourse has been modified by engineering works to alter is original form or alignment such as, for example concrete or gabion lining, or channel straightening works.
River Is a continually or intermittently flowing body of freshwater and includes a stream and modified watercourse, but does not include any artificial watercourse (including an irrigation canal, water supply race, canal for the supply of water for electricity power generation and farm drainage canal).
RMA Resource Management Act 1991
Sediment Eroded material that can include adsorbed contaminants.
SMAP Stormwater Management Area Plan
Stormwater Water that falls to the ground, runs off the surface into streams, lakes, marine areas or underground aquifers and includes the contaminants washed off surfaces by water.
1 In the context of these guidelines, an ‘urban catchment’ is considered to be a defined urban area for which a CSC is sought. The defined urban catchment may be the entire urban area from which rainfall is collected and consist of many hydrological sub-catchments. It is likely to have multiple stormwater discharge points to receiving water that are located both within and beyond it’s boundaries.
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Stormwater Management A unit which represents the areas catchment (area within which Area Plan runoff is carried under gravity drainage system to a common outlet) plus, selected adjacent areas where the aspiration is for those areas to be managed by the same network or process
Stormwater Network A system of pipes and ancillary works to collect and convey stormwater to the place of discharge.
Suspended Solids Sediment or other solids either suspended or floating in runoff.
WARMP Wairau Awatere Resource Management Plan
Watercourse See River
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1 Introduction
Stormwater management in Blenheim is a critical challenge for the town, both currently and when future potential growth is concerned. Many challenges are created by the flat topography and unique and sensitive receiving environments.
The Blenheim Stormwater Strategy has been developed in order to provide a clear, long term direction for stormwater management in Blenheim. It provides a a guide to making decisions on the future management of the stormwater system and in this context provides a number of goals and policies. This Strategy also provides a basis for applying for a comprehensive discharge consent of stormwater in Blenheim.
This document provides a suite of actions which deliver improvements wanted by the strategy. This Action Plan, therefore, needs to be read in conjunction with the Stormwater Strategy.
1.1 Responsive Process
This document is a living document. The priority of and specifics of actions will be modified following analysis of monitoring information and in response to any issues identified. Modification is anticipated to be needed following the first year of operation which will in particualr entail examination of the priority of actions listed in schedule 1.
It is proposed that Council should establish a working group, with a small focussed team to guide the development of the strategy and ensure that it is integrated with the action plan. This working group should:
Work to a program; Seek to gain the appropriate budgets; and, Review the outcomes of the process over the agreed duration of the project.
1.2 Stormwater Strategy
This Strategy has a number of goals, policies and actions. The Strategy firstly identifies a range of issues, both at a generic and a catchment level. A total of eight stormwater management areas are identified to assist in managing stormwater and developing priorities. A number of receiving environments are also affected by the Strategy. These are shown in the Figure 1.
The strategy is aimed primarily at Council to assist the assets and operations team in managing stormwater. There are a number of other stakeholders too, including other parts of MDC (acting as regulators, for example), the development community, and Blenheim residents and ratepayers.
The goals and policies of the Strategy have been developed to provide an integrated approach and to guide the management of stormwater for Blenheim. The Strategy has the following, over-arching goals:
Integrated Management
Goal 1 To provide an integrated approach to the management of stormwater in Blenheim.
Goal 2 To support the implementation of the strategy with a comprehensive monitoring and enforcement program.
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Asset Management and Flooding
Goal 3 To ensure the stormwater network provides an appropriate response during flooding events so that people and property are protected to accepted standards.
Goal 4 To provide guidance on effective and efficient management of MDCs stormwater assets.
Receiving Environment
Goal 5 To maintain or enhance the environmental performance of the stormwater system, and quality of receiving environments.
Stakeholder engagement and education
Goal 6 To engage with key stakeholders, and educate wider community on the importance of integrated stormwater management.
Planning and Regulation
Goal 7 To ensure the planning and regulatory framework remains responsive to integrated stormwater management.
Goal 8 To gain a comprehensive discharge consent for Blenheim’s stormwater network for a 35 year term.
Figure 1: Stormwater Management Areas and Receiving Environments
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(no. ID – see Appendix A)
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2 Actions
The actions are arranged in schedules which correspond with the 6 management approaches listed in the Strategy document and are provided as schedules 2 to 7 of this report. Schedule 1 of this report provides a selection of actions from schedules 2 to 7 which are proposed to be brought forward first.
A full list of actions (by identifier number only) cross referenced to the schedules 1 - 7 of the Action Plan is provided overleaf (table 2-1). The colour indicates priority and also those projects which are 'ongoing' are identified. Once these are implemented and if needed (subject to annual review) they can continue to be delivered for a number of years.
Timeframes
The implementation of this stormwater strategy relies on three key timeframe periods, as follows:
Short Term – this is the 0-5 year period, which specifically is the initial period to be governed by the comprehensive discharge consent, and allows a range of further investigations, monitoring and other activity.
Medium term – this is the 5-10 year period; during which is it anticipated most of the catchment management plans will be prepared and finalised.
Ongoing and/or long term – these may be tasks that occur in the short or medium term, or may be long term tasks that take 35 years (or the life of the stormwater strategy combined with the comprehensive discharge consent).
Priorities
Each action is assigned a priority, as follows:
High – must be undertaken either to address a known or imminent issue which is or will shortly cause significant adverse effects, or which is to be required as part of the comprehensive discharge consent.
Medium - must be undertaken either to address a known or imminent issue which is causing adverse effects or which may be causing effects but which are of lower risk, or which is to be required as part of the comprehensive discharge consent.
Low - to be undertaken as part of the wider implementation program, but not critical to addressing immediate effects or issues, but part of the strategic direction of the strategy.
In order to identify important tasks more readily, the following ‘traffic light’ rating system is used to identify those projects which need to be initiated as soon as practicable (‘red light’) versus those that are medium term (‘orange light’) or long term/ ongoing but of lower priority (‘green light’).
Table 2-2: Prioritisation of Actions
High Med Low
Short Term
Medium Term
Ongoing - Long Term
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Table 2-1: Overview of Actions by Schedule (colour coding indicates priority)
3 Schedule 1: Implementation – Stage 1 This Schedule provides a summary of the key activities to be undertaken in the first stage of implementation. This is considered to be the first five years, or should the comprehensive discharge consent identify an alternative timeframe, the point at which the first key monitoring report is completed, and the strategy reviewed.
This schedule should be reviewed and updated annually, and aligned with budgets and inputs to the annual plan process.
Prior to any of the actions below being carried out, an assessment of costs and benefits of carrying out each of the actions, should be done. Costing should also include the costs involved in installing any stormwater treatment devices.
Specific actions also identify timeframes and priorities for implementation. These are explained below.
Resource Consent Application
The first task once this Strategy is adopted is to lodge a resource consent for the comprehensive discharge consent (or CSC). This will involve the preparation of an Assessment of Environmental Effects in accordance with the Fourth Schedule of the RMA, and associated documentation.
Priority Implementation Measures
The following table identifies those priority implementation measures which are considered critical to the first implementation period, and which are likely to be required by any consent conditions for the comprehensive discharge consent.
Indicative budgets are provided where possible, for the purpose of external costs
# Action Priority Timeframe Indicator
1a Review specific stormwater management information including flooding and stormwater contaminant levels on an annual basis.
High Short
1c Develop and implement a specific environmental monitoring program aimed at identifying the relative contributions and issues associated with urban versus rural water quality.
High Short
1f Establish clear overall accountability for stormwater management across both network and urban streams/waterways for quantity and quality.
High Short
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# Action Priority Timeframe Indicator
2f Prepare comprehensive stormwater catchment management plans for all catchments within the Blenheim area, priority based on risk. A risk based programme priority is provided in table below
High Medium
3a Develop a comprehensive monitoring programme to support the resource consents and enable a staged and prioritised approach to addressing stormwater management issues across the City.
High Short
3b Undertake monitoring to allow refinements in the application of the strategy principles and action plan requirements, within the boundary of any subsequent resource consent granted for stormwater discharge.
High Short
3g Review Implementation Programme annually (need some questions answered, including who does the review, should initially be driven by assets, submitted to regulatory to satisfy consent conditions occurs annually and must be tangible.
High Short
8a Review results of water quality monitoring and distinguish rural and urban contaminants and effects for receiving environments upstream of urban Blenheim to determine level of change occurring as a result of non-point source rural discharges.
High Short
9e Provide for integration between Stormwater Strategy and Urban Growth Strategy in LTCCP to ensure funding for future services is earmarked ahead of time (and give priority to identified catchments/works).
High Short
4a Determine the level in the roading hierarchy where it is acceptable to have flooding by secondary flows
High Short
4b Develop specific outcomes sought in relation to each type of land use, in particular set standards for the level of protection that should be offered to open space, commercial, industrial and residential development.
High Short
5c Identify and map areas where discharge to ground or ground soakage is possible and appropriate, and ensure this is linked into the WARMP and building consent processes.
High Short
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# Action Priority Timeframe Indicator
5j In assessing discharge applications any additional discharge shall not compromise the performance of the downstream drainage system. This shall take into account potential discharge from other zoned but undeveloped land draining to the drainage system.
High Short
10d Identify where stormwater systems and treatment devices are not performing.
High Short
2b Develop a risk-based framework to managing land use and stormwater contaminants.
High Short
7a Develop specific guidelines on dewatering techniques for construction projects.
High Short
12a Improve the understanding of the effects of stormwater derived sediments and contaminants on the ecological and amenity values of the receiving environments.
High Short
1b Review the stormwater strategy within five years to determine the appropriateness of this Stormwater Strategy and associated stormwater discharge consents.
High Short
7f Develop a bylaw on tradewaste connections which provides Council sufficient powers to remedy/prosecute any non-compliance with the standards and rules.
High Short
7g Review WARMP rules to ensure they provide sufficient ability to regulate land use, including specifically industrial and commercial landowners.
High Short
9g Review approach to collecting development contributions to ensure it remains responsive (preference to move to LGA rather than RMA).
High Short
10c Develop bylaws for new connections of industrial and commercial premises to the Council stormwater network, including for treatment of stormwater quality.
High Short
13c Apply for comprehensive discharge consent. High Short
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Program of Stormwater Management Area Plans
Based on the above priorities (and as described in section 6 of the Stormwater Strategy Technical Report), the programme for preparation of SMAPs could be, as follows (note that the following prioritisation does not allow for emerging potential future development locations):
Stormwater Management Area
Year
1
Year
2
Year
3
Year
4
Year
5
Year
s 5-
10
Monitoring data
SMAP Guidelines prepared.
Blenheim Central
Opawa Loop
Springlands
Kinross
Monro/Muller
Upper Taylors
Town Branch
Wither
The prioritisation shown above is provisional and the first year of implementation involves the collection of further monitoring data. Once this data has been collected and analysed, and taking into consideration parallel work streams of the Council (e.g. on urban growth) the prioritisation of preparation of Stormwater Management Plans may be modified. It is thus understood for example that Town Branch and Springlands may be brought forward earlier (in the first tranche of work) in response to emerging future development locations and pressures.
1a Review specific stormwater management information including flooding and stormwater contaminant levels on an annual basis.
High Ongoing
1c Develop and implement a specific environmental monitoring program aimed at identifying the relative contributions and issues associated with urban versus rural water quality.
High Short
1e Identify and utilise appropriate databases including GIS to integrate rivers and stormwater network; to ensure validity of information and update as necessary. Allow access to database to facilitate good data availability.
Medium Short
1f Establish clear overall accountability for stormwater management across both network and urban streams/waterways for quantity and quality.
High Short
2a Maintain a total environmental perspective in managing the stormwater network and receiving environment.
High Ongoing
2d Prepare or revise design codes and guidelines to support the use of appropriate stormwater management practices.
Medium Medium
2f Prepare comprehensive stormwater catchment management plans for all catchments within the Blenheim area priority based on risk.
High Medium
2g Develop a comprehensive network plan for Blenheim which identifies at a city-wide level the basic model for moving stormwater from land to receiving environment, including any significant needs to re-divert catchments to alternative receiving environments.
High Medium
3a Develop a comprehensive monitoring programme to support the resource consents and enable a staged and prioritised approach to addressing stormwater management issues across the City.
High Short
3b Undertake monitoring to allow refinements in the application of the strategy principles and action plan requirements, within the boundary of any subsequent resource consent granted for stormwater discharge.
High Short
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# Action Priority Timeframe Indicator
3c Undertake monitoring to demonstrate the result of investment in stormwater management infrastructure and management techniques.
Medium Short
3d Continue research to better understand the monitoring of the environment.
High Ongoing
3f Undertake monitoring to assess the effectiveness of management methods.
High Medium
3g Review Implementation Programme annually (need some questions answered, including who does the review, should initially be driven by assets, submitted to regulatory to satisfy consent conditions occurs annually and must be tangible.
High Short
4g Integrate capacity upgrades with urban growth strategy for Blenheim.
High Medium
6e Any development relating to existing and future waterways (including channels/drains) shall incorporate as appropriate multiple functions (recreation, access for maintenance, habitat, visual amenity, connectivity).
High Ongoing
7i Wherever a stormwater quantity storage device is being constructed, consider opportunities to achieve quality improvement (and any other objectives).
High Ongoing
8a Review results of water quality monitoring and distinguish rural and urban contaminants and effects for receiving environments upstream of urban Blenheim to determine level of change occurring as a result of non-point source rural discharges.
High Short
8b If rural contributions to water quality are considered significant, develop a specific action plan for addressing these water quality challenges, including (a) Create and protecting riparian buffers between stormwater sources and watercourses; (b) Re-evaluate whether stormwater treatment options being pursued in urban Blenheim are not providing best value for money; (c) Retrofit stormwater treatment devices in existing drainage systems should problems be identified. This should include options for employing the use of wetlands (including constructed wetlands) and other retention systems along stormwater drains.
High Medium
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# Action Priority Timeframe Indicator
8c If urban contributions to water quality are considered significant, develop a specific action plan for addressing these water quality challenges, including (a) Create and protecting riparian buffers between stormwater sources and watercourses. (b) Re-evaluating whether stormwater treatment options being pursued in urban Blenheim are not providing best value for money (c) Retrofit stormwater treatment devices in existing drainage systems should problems be identified. This should include options for employing the use of wetlands (including constructed wetlands) and other retention systems along stormwater drains.
High Medium
8d Map stream classifications. Medium Short
9c Where significant pressure for brownfield development occurs in any one SMA, review priorities for preparing SMAP.
Medium Ongoing
9e Provide for integration between Stormwater Strategy and Urban Growth Strategy in LTCCP to ensure funding for future services is earmarked ahead of time (and give priority to identified catchments/works).
High Short
10b Monitor the effectiveness of existing stormwater treatment practices, particularly those provided for industrial and commercial sites.
4a Determine the level in the roading hierarchy where it is acceptable to have flooding by secondary flows
High Short
4b Develop specific outcomes sought in relation to each type of land use, in particular set standards for the level of protection that should be offered to open space, commercial, industrial and residential development.
High Short
4c Prepare comprehensive flood maps for each SMA to identify areas where insufficient capacity in network exists. This should occur as part of the SMAP for each specific catchment.
Medium Ongoing
4d Develop a transparent framework for making decisions in relation to how network flow problems will be solved in each catchment.
Medium Medium
4f Undertake further evaluation of Flow levels to assist in providing clear guidance for asset managers and future developments.
Medium Medium
4h Infill subdivision development will not be approved until the network can accept flow without compromising standards.
High Ongoing
4i Existing serviced development can only occur where capacity exists: define acceptable standards and future growth areas.
Medium Medium
5a Reduce hydrological effects of development on more frequent storm peaks to manage potential effects on stream morphology and erosion.
Medium Medium
5b Minimise the impact of new greenfields development on existing, runoff patterns, including requiring new development to limit peak runoff rates to existing levels and minimise runoff volumes.
High Medium
5c Identify and map areas where discharge to ground or ground soakage is possible and appropriate, and ensure this is linked into the WARMP and building consent processes.
High Short
5f Develop agreed maximum limits of site impervious coverage that are appropriate for each catchment, and ensure rules and/or education measures are in place to minimise the amount of impervious cover of keep it within the acceptable limits.
High Medium
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# Action Priority Timeframe Indicator
5g Identify options for reducing existing impervious cover, in particular through best practice on Council owned or developed property.
Medium Medium
5h Explore whether the reuse of stormwater is a viable option in parts of Blenheim, including the use of rainwater storage tanks on private properties.
Medium Medium
5j In assessing discharge applications any additional discharge shall not compromise the performance of the downstream drainage system. This shall take into account potential discharge from other zoned but undeveloped land draining to the drainage system.
High Short
10a Develop and implement stormwater management action plans for each catchment, based on priorities identified in this strategy.
High Medium
10d Identify where stormwater systems and treatment devices are not performing.
High Short
10e Identify and map infrastructure in poor condition in each catchment – make sure this information is available and is utilised when making capacity upgrade decisions.
Medium Short
10f Identify retrofit opportunities to upgrade existing stormwater systems that have been identified as discharging to priority catchments. This should occur in conjunction with land intensification decisions to identify areas where infill is most appropriate.
Medium Medium
10g Undertake mapping and auditing of soakpits, including development of a database of information.
Medium Short
10h Develop improved understanding of current runoff characteristics including informal storage and runoff coefficients. Incorporate results into design techniques and guidelines.
2b Develop a risk-based framework to managing land use and stormwater contaminants.
High Short
2c Identify high risk sites based on criteria developed in 2B and develop an auditing and action program for high risk land users to improve quality of discharges from these sites.
High Medium
6a Map riparian margins along existing streams, and identify areas where future riparian margins should be protected or enhanced, including for flood storage, ecological, access and water quality objectives.
Medium Medium
6b Avoid piping or channelling stream channels, including first order streams.
High Ongoing
6c Maintain sufficient water flows in streams to support aquatic life, with a particular emphasis on maintaining baseflows.
Medium Ongoing
6d Avoid constructing stormwater quality improvement devices ‘on line’ within perennial watercourses, and where there is on-line flood attenuation, ensure fish passage is provided.
High Ongoing
6f Any instream works/structures to provide for fish passage.
High Ongoing
7a Develop specific guidelines on dewatering techniques for construction projects.
High Short
7b Maximise the use of appropriate stormwater quality control measures at source for new industrial and commercial development.
High Ongoing
7c Encourage/require good housekeeping systems on existing commercial and industrial sites.
High Ongoing
7d Apply industry specific Codes of Practice, which include environmental management procedures and for major transport corridors.
Medium Medium
7h Until such time as monitoring shows otherwise, Council will not require point source/stormwater treatment from existing residential.
Low Short
11c Promote the use of stormwater methods that minimise, retain and treat direct stormwater runoff.
High Ongoing
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7 Schedule 5 – Stakeholder Engagement and Education Actions
# Action Priority Timeframe Indicator
1d Develop a broader MDC wide awareness campaign on environmental issues, including stormwater. This should include targeted education packages, including for homeowners to ensure they understand what can and cannot be discharged into Council’s stormwater system.
Medium Short
2e Identify examples of best practice that Council will accept.
Low Short
12a Improve the understanding of the general public of the effects of stormwater derived sediments and contaminants on the ecological and amenity values of the receiving environments.
High Short
12b Carry out industry specific education programmes, outlining the impact of the specific contaminants on the environment.
High Medium
12c Improve the understanding of costs associated with managing flooding and contamination issues.
Medium Medium
12d Develop partnerships with local schools specifically on stormwater management and stream protection. provide resource materials.
Medium Medium
13a Develop guidelines/training – regular and ongoing programme for regulatory staff processing/compliance consents (SW, subdivision, building).
1b Review the stormwater strategy within five years to determine the appropriateness of this Stormwater Strategy and associated stormwater discharge consents.
High Short
3e Set standards and/or guidelines where practicable to enable useful and comparative environmental assessments to be undertaken.
Medium Medium
4e Review WARMP to review activity status for infill development and recommend changes. The review should also determine the most appropriate status for greenfield and brownfield residential development, including reviewing densities and activity status (so that consents can be declined if there is inappropriate provision for stormwater disposal).
High Medium
5d In development areas, retain good surface infiltration characteristics wherever practicable.
Medium Medium
5e Identify groundwater recharge areas and minimise the effects of development on water quality in these areas, in particular in the Springlands catchments.
Medium Medium
5i Review building consent processes for alignment with stormwater strategy.
Medium Medium
7e Have a progressive enforcement programme to discourage potential polluters, specifically for industrial and commercial sites.
Medium Ongoing
7f Develop a bylaw on tradewaste connections which provides Council sufficient powers to remedy/prosecute any non-compliance with the standards and rules.
High Short
7g Review WARMP rules to ensure they provide sufficient ability to regulate land use, including specifically industrial and commercial landowners.
High Short
9a Subdivision and development of greenfield sites should be designed and managed so as to emphasise the protection and enhancement of streams, lakes, watercourses, wetlands and the coast and the enhancement or restoration of riparian vegetation.
Medium Ongoing
9b Structure planning processes should be undertaken and include full consideration of matters relating to stormwater issues.
Medium Ongoing
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# Action Priority Timeframe Indicator
9d Develop designs and stormwater management techniques (e.g. LID) that minimise the need for stormwater infrastructure, especially reticulated systems with direct discharges to streams.
Medium Ongoing
9f Any significant new development at residential density on parent lots >10ha or rezoning shall be subject to structure planning to identify key infrastructure connections to Councils existing networks (amongst other things).
Medium Ongoing
9g Review approach to collecting development contributions to ensure it remains responsive (preference to move to LGA rather than RMA).
High Short
10c Develop bylaws for new connections of industrial and commercial premises to the Council stormwater network, including for treatment of stormwater quality.
High Short
11a Ensure stormwater strategy is a key driver in developing future land use and growth options for Blenheim, particularly in those catchments or parts of the network where there are already significant capacity constraints.
High Ongoing
11b Encourage development styles and stormwater management methods that mimic natural runoff patterns.
High Ongoing
11d Ensure that appropriate techniques are supported by design codes to provide for best practice application – revise codes if necessary.
High Ongoing
13b RPS or WARMP Review – any review of RMA policy/regulation should incorporate the provisions in, and preferably give-effect to the Stormwater strategy (via comprehensive review or variation).
High Medium
13c Apply for comprehensive discharge consent. High Short